The Complexification of the United Nations System Paul C. Szasz I. Simple and Complex Subsidiary Organs and Quasi-Autonomous Bodies 1. Appointment of the Executive Heads of QABs 2. Appointment of the Staffs of QABs 3. Political Bodies of the QABs 4. Financing the QABs 5. Some Difficult-to-Classify Organs 6. Summary and Conclusions about QABs II. Treaty Organs 1. Human Rights TOs 2. Arms Control TOs 3. UN TOs established by Other Treaties 4. TOs of Other UN System IGOs 5. Summary and Conclusions about TOs III. Environmental Entities: TOs or IGOs? IV. Specialized Agencies and Other UN System IGOs V. Joint Bodies 1. Joint Substantive Organs 2. Interorganizational Organizations 3. Administrative Organs of a Joint Character VI. Temporary Entities 1. Conferences 2. Preparatory Commissions VII. Concluding Observations 2 Max Planck UNYB 3 (1999) In its own way, matter has obeyed from the beginning that great law of biology, to which we shall have to recur time and again, the law of "complexification ". Pierre Teilhard de Chardin1 Not only matter and biology, but our understanding of the Universe2 as well as the organizations that people create for their governance appear to obey the law of complexification. Indeed, human institutions show many of the traits of biological systems, including a striving to grow as far as resources allow, a tendency to proliferate and a resistance to anni- hilation unless survival by successors is assured. The type of interna- tional phenomena described below can be observed in most national governments, few of which can still be described completely or even meaningfully in terms of just the principal constitutional structures such as a legislature, a chief executive and some senior courts, without taking account of ministries, departments, services, regulatory agencies, spe- cialized subsidiary courts, and permanent or ad hoc commissions and coordinating bodies. Just half a century ago, the Charter of the United Nations laid down a rather simple structure for the Organization: internally it would con- sist of six principal and a number of subsidiary organs;3 externally it would be surrounded by a halo of specialized agencies with which it The Phenomenon of Man, 1955, Book One, Chapter 1.3.A. The term "complexification" is discussed by Julian Huxley (the first Director- General of UNESCO) in his Introduction to the Perennial Library edition, 1975. For example, during the past half century (the period of UN evolution de- scribed in this study) our understanding of the universe evolved from ob- serving the galaxies, stars, planets, moons, comets and asteroid that could be seen through the then best telescopes, to grasping phenomena such as super clusters of galaxies, globular clusters, black holes, quasars, pulsars, gamma-ray bursters, supernova, red dwarfs and white giants, binary sys- tems, the Oort Cloud and the Kuiper Belt, not to speak of the hypothe- sized "cold dark matter"; similarly, during this period, we have progressed from conceiving the atom in terms of just protons, neutrons and electrons, to a whole zoo of sub-atomic panicles, including quarks of various flavors and colors, neutrinos, miscellaneous mesons and speculations about Higg's boson, gravitrons, strings, WIMPS and yet more exotic manifestations. See United Nations Charter Arts 7, 22, 29 and 68, and Article 26 of the ICJ Statute. Szasz, The Complexification of the United Nations System 3 would maintain defined close relationships4 and which would be part of the "UN System". By today, this simple scheme has proliferated into a veritable jungle of miscellaneous entities, including numerous quasi- autonomous bodies (described in Section I.), treaty organs (Section II.), enhanced treaty organs (Section III.), two categories of specialised agen- cies and other related organizations (Section IV.), and a variety of other entities and arrangements in part designed to coordinate these many new actors (Sections V. and VI.). This study will endeavour to describe and classify these various types of new structures, through which a substantial — if not the pre- dominant — part of the work of the United Nations and of the UN System is currently carried out. It should be understood that this exer- cise in institutional taxonomy is — because of space limitations — not intended as a complete, authoritative description of all the entities men- tioned and of their histories.5 Rather, it is but an academic essay to bring some order into the chaos resulting on the one hand from the very pli- ability of international administrative law, which is still largely uncodi- fied and therefore easily permits convenient experimentation, and on the other from the rather ambivalent feelings of national governments that see the need for collective action in many areas yet hesitate to cre- ate still more potentially powerful permanent international structures. An attempt is also made to introduce some new terminology designed to clarify discussion in this murky field. I. Simple and Complex Subsidiary Organs and Quasi- Autonomous Bodies The United Nations Charter does not describe the types of subsidiary organs it refers to in Arts 7 para.2, 22 and 29. However, five of the prin- cipal organs listed in Article 7 para.l and established by later Chapters are all simple, in that each consists of only a single structure: a political See in particular United Nations Charter Arts 17 para.3, 57-58 and 63. Much useful data about the institutions described herein, as well as about many others, can be found in the annual United Nations Handbook pub- lished by the New Zealand Ministry of Foreign Affairs and Trade, which also contains a very full List of Acronyms. The Acronyms used in this arti- cle, including some specifically developed for this study, appear for the most part in the Annex hereto, except for those in the list of Abbreviations used for this book. 4 Max Planck UNYB 3 (1999) body in case of the General Assembly and the three Councils and an administrative one in case of the Secretariat; only the ICJ is complex, in that it consists of a judicial body and an administrative one (the Regis- try). The single subsidiary body established by the Charter itself is the Military Staff Committee, a simple political/expert body.6 It might therefore be assumed that the subsidiary organs that are foreseen would also be predominantly simple ones, and that indeed has been the nature of almost all the political,7 expert,8 judicial,9 military10 and secretariat 6 United Nations Charter Article 47. 7 Political or representative bodies are those that consist of states, which ap- point the representatives that actually constitute the body. For example, the Ad Hoc Committee on the Indian Ocean, the Committee on Conferences, the Committee on the Exercise of the Inalienable Rights of the Palestine People, and the United Nations Commission on International Trade Law (UNCITRAL) all established by the General Assembly; the Functional Commissions, such as the Commissions on Human Rights and on the Status of Women, established by the Economic and Social Council (ECOSOC); and the several Sanctions Committees established by the Se- curity Council. 8 Expert bodies are those whose members are persons selected, at least nominally, in their individual capacity and not as governmental representa- tives — though nationality is taken into account at least insofar as it is normally provided that such bodies shall not have more than one member of any nationality. Examples include the International Law Commission (ILC), the Advisory Committee on Administrative and Budgetary Ques- tions (ACABQ) and the Committee on Contributions, all established by the General Assembly; the Ad Hoc Group of Experts on International Co- operation in Tax Matters established by ECOSOC; and the Sub- Commission on Prevention of Discrimination and Protection of Minorities established by the Commission on Human Rights of ECOSOC. 9 Judicial organs are ones whose members act as judges (whether or not that is their normal capacity), in that they perform their functions independ- ently not only of their national governments but also of the organ that es- tablished the judicial body and of all other international organs. One ex- ample is the Administrative Tribunal established by the General Assembly. The two International Criminal Tribunals, for the Former Yugoslavia and for Rwanda, established by the Security Council, are also judicial organs, but they are not simple ones, as they consist of several organs: true judicial ones, the Trial and Appeals Chambers, and two separate secretariat ones, the Prosecutor and the Registry. 10 Military organs are the peace-keeping operations, for the most part estab- lished by the SC, consisting of: a Commander (normally a high-ranking military officer seconded by a state to the UN Secretariat — and thus Szasz, The Complexification of the United Nations System 5 organs11 that have been established. It should also be noted that some subsidiary organs are empowered by their mandates to establish sub- subsidiary organs. Although probably unanticipated by the drafters of the Charter, over the years a number of complex subsidiary organs have been estab- lished. Many of these are, in effect, mini-intergovernmental organiza- tions (IGOs), that consist of at least one political body and an executive head who directs a special secretariat for the organ. Indeed, the sub- stantive interchangeability of some of these complex organs with spe- cialized agencies (which, of course, are IGOs) can be illustrated by the fact that one short-lived specialized agency, the International Refugee Organization (IRO) was, on its dissolution, replaced by a complex sub- sidiary body, the UN High Commissioner for Refugees (UNHCR) and his Office, while the United Nations Industrial Development Organi- zation (UNIDO), which originated as a General Assembly-established subsidiary organ, was replaced by the current specialized agency with the same name and substantially the same structure.